BILL ANALYSIS Ó AB 2514 Page 1 ASSEMBLY THIRD READING AB 2514 (Bradford) As Amended May 1, 2012 Majority vote UTILITIES & COMMERCE 11-0 APPROPRIATIONS 17-0 ----------------------------------------------------------------- |Ayes:|Bradford, Buchanan, |Ayes:|Fuentes, Harkey, | | |Fuentes, | |Blumenfield, Bradford, | | |Bonnie Lowenthal, Gorell, | |Charles Calderon, Campos, | | | | |Davis, Donnelly, Gatto, | | |Roger Hernández, Knight, | |Ammiano, Hill, Lara, | | |Ma, Nestande, Swanson, | |Mitchell, Nielsen, Norby, | | |Valadao | |Solorio, Wagner | | | | | | |-----+--------------------------+-----+--------------------------| | | | | | ----------------------------------------------------------------- SUMMARY : Requires the California Public Utilities Commission (PUC) to complete a study on the cost of net energy metering (NEM) to ratepayers. Specifically, this bill : 1)Requires PUC to complete a study by June 30, 2013, to determine the extent to which each class of ratepayers and each region of the state receiving service under the net energy metering tariff is paying the full cost of the services provided to them by the investor owned utilities. 2)Requires PUC to report on the extent to which customers receiving net metering pay their share of the costs of public purpose programs, and the benefits of net energy metering. 3)Requires the commission to report the results of the study to the Legislature within 30 days of its completion. EXISTING LAW : 1)Requires nearly every utility in California to provide a net metering rate to customers connecting renewable energy projects to utility service equipment until the total renewable capacity equals no more than 5% of each utility's aggregated peak electricity demand. AB 2514 Page 2 2)Requires payment for excess electricity generation to be credited to the customer's utility account at the retail rate of electricity based on the customer's applicable tariff. 3)Exempts net metered utility customers from payment of some otherwise nonbypassable utility service charges. 4)Requires nearly every utility in California to provide a connection to the electricity grid within 30 business days. FISCAL EFFECT : PUC is in the process of awarding a contract for an NEM cost/benefit study, has allocated up to $250,000 for this purpose, and anticipates that this study will be well along by the time this bill would become effective. PUC indicates, however, that the pending study does not include all of the parameters specified in this bill-specifically evaluating the costs and benefits by region and performing the analysis using specific definitions of peak demand and generation capacity. Therefore, a subsequent study based on this bill will entail additional one-time special fund costs, potentially in the range of $100,000. COMMENTS : Statement of Need . Net metering is a popular program that has helped build an active solar photovoltaic industry in California. When net metering was first authorized by the Legislature 14 years ago, we recognized that net metering had costs associated with it but that those costs were worth it because we would be bringing jobs, economic opportunity, and ratepayer benefits through this policy. Clearly a lot has changed. Photovoltaic (PV) modules are selling below $1 per watt, installed costs have dropped to historic lows, the California Solar Initiative (CSI) is on track to meet its goals by 2016, and utility solar generation contracts are coming in at less than nine cents per kilowatthour while some NEM customers are getting more than four times that amount. It is time to take a look at where we are and see if there is a way to make sure that NEM can be a sustainable program. Some suggest the best answer is to make it a generation-only rate, others suggest full retail and nothing else, and there are variations in between. With so much progress, it is logical to consider reforming NEM subsidies. But to understand how to reform NEM it AB 2514 Page 3 is important to understand the costs and benefits of NEM. Until then, changing NEM, raising project size caps and total capacity caps and adding charges cannot be done without risking ratepayer backlash because of the cost or stymieing the growth of this in-state industry. Background . Under net-metering, the electric utility is required to "buy back" all electricity generated by a customer-owned generator that is not consumed by the customer on-site. The price is set by the applicable retail rate under the customer's existing contract. When the customer generates electricity, he/she uses most of it for his or her own facility. At the end of each 12-month NEM period, the electric corporation calculates the amount of electricity distributed to the grid by the customer and reduces the customer's annual bill by the amount of electricity generated by the customer. If the customer consumes more electricity than their facility generates the utility calculates a bill based on the net consumption of utility delivered kilowatthours. This NEM statute allows the credit at the customer's retail price - a price that is much higher than the generation costs because the retail price includes non-generation charges, including but not limited to transmission and distribution service, the California Rates for Energy (CARE) subsidy, public good charges, and service charges for billing and customer service (Note that transmission and distribution service charges include, among other things funding for PUC and California Independent System Operator (CAISO), and utility return on investment). If the customer-generator is being paid the retail price, the non-generation costs are shifted to the utilities' other ratepayers. There is another NEM statute for Fuel Cell projects that provides a similar credit based on the generation only rate. The Fuel Cell NEM customers using this statute pay their service charges and there is no cost shift to other ratepayers. Some commercial customers, but not all, will pay demand charges, irrespective of NEM credits. The demand charges may be assessed during periods when the renewable project is operating, thereby offsetting these charges. NEM is available to all utility customers, including residential, commercial, industrial, agricultural, and government. AB 2514 Page 4 NEM customers are not 'off the grid.' They are connected to the utility services and use utility services at any time the on-site generation facility is not operating. For customers with solar generation, these will be nighttime, during inclement weather, or when the generation facility is out of service. Fixed costs and variable costs . PUC determines the rates to be assessed all customers served by investor owned utilities (IOU). These rates include fixed and variable costs. Fixed charges include public purpose programs, transmission and distribution services, funding for PUC and CAISO, local utility user taxes, low income subsidy programs, and other charges. The extent to which a NEM customer has avoided fixed costs of utility services, while still using utility services means that those costs must be shifted to another ratepayer. Fixed costs are applied as a volumetric charge assessed on each kilowatthour of energy used by the customer. With NEM, the customer is billed for net kilowatthour usage, that is, those kilowatthours provided by the utility after deducting excess kilowatthours generated by the customer. This reduces the fixed charges that would have otherwise been paid for by NEM customers. In addition to this subsidy by non-NEM customers, non-NEM customers also pay for the cost of utility safety inspections and any electricity distribution upgrades that may be necessary to ensure safety and reliability because of the total generation added to the distribution system. The expected cost-shift to other ratepayers is not currently quantified for all ratepayers . The most recent study by PUC, published in 2010, estimated that "PV generation on NEM tariffs (386 megawatts (MW) installed through 2008) will result in a net present value cost to ratepayers of approximately $230 million over the next 20 years." Since then, the total MWs interconnected has more than tripled and electricity rates have changed. PUC study did not estimate cost differences between different classes of customers, i.e., commercial and residential customers, nor did it quantify the cost of interconnection inspections. While this bill does not apply to the Publicly Owned Utilities (POUs), it is useful to point out that no study of cost shifting AB 2514 Page 5 has been done for POU's. Note that NEM statute applies to every POU except Los Angeles Department of Water Power (LADWP). Quantifying the benefits . Since the last PUC NEM study, PUC has also done extensive research on distributed generation (for both the Feed in Tariff and Reverse Auction programs). Two recent studies show that location and local electricity demand are, among other things, important considerations as to whether a self-generation facility benefits other ratepayers. The studies also show potential cost impacts as well. PUC should include this kind of data and analysis in this NEM study. PUC has also identified other benefits of self-generation, including displacement of electricity demand during periods of peak electricity demand, when cost of electricity is typically highest. Most people think of peak demand in the summer, when reliance on air conditioning is at its highest. Peak demand is not uniform throughout the state and in some areas, peak demand occurs in the winter. For example, a study by the California Energy Commission (CEC) found that the Alameda Power (a POU located near Berkeley) is a winter-peaking utility, when cost of electricity is typically low. Some regions served by IOUs may also have winter peaks. Summing all of NEM generation and assigning a value that is based on summer peak electricity pricing may not be providing an accurate assessment of costs and benefits. PUC maintains an extensive database on the performance and location of solar projects receiving solar rebates. This database can provide meaningful information that can be disaggregated regionally to help provide insights into where most projects are being placed and whether those locations are in areas that PUC's studies on distributed generation (DG) have identified as being valuable to the grid. Can the electrons flow out from one project and provide electricity to another customer ? NEM projects are equipped with bi-directional meters that count the flow of kilowatthours to and from a utility customer. With respect to where electricity that flows 'back to the grid,' there is no way to know where that electricity was discharged. It cannot be said with certainty that the power flowed to the neighbor because one cannot say whether the neighbor was drawing any power at the moment the electricity became available. In any case, the transformers and substations are not bi-directional so any electricity that flows onto the grid from a customer-generator AB 2514 Page 6 will be limited to a confined area. On weekends, electricity demand is typically substantially lower than on weekdays, so that extra electricity may have little or no value. In any case, PUC should quantify the extent to which excess electricity from a NEM customer is reducing cost of electricity that would otherwise be purchased by the utility to provide to both non-NEM and NEM customers. NEM Capacity Cap . PUC is currently considering revising the method that has been used to calculate the cap. Solar industry organizations have asked that the method to calculate the cap be revised to allow more capacity to be installed under the current cap. Their proposal would more than double the subsidy. In 2010 the Legislature approved AB 510 (Skinner), Chapter 6, Statutes of 2010, which raised the maximum NEM cap to 5% so that all of the projects authorized by SB 1 (Murray), Chapter 132, Statutes of 2006, to receive ratepayer-funded incentives can also receive NEM. The purpose of the cap was to ensure that there are limits on the amount of cost-shifting to non-NEM customers. In evaluating program costs and benefits for purposes of the study, the bill requires PUC to use the peak demand reported in the utility's Form 1 filing with the Federal Energy Regulatory Commission (FERC) and the sum of the individual NEM customer capacity is based on CEC-AC rating. (Both of these values are generally accepted by utility and renewable energy industries and are publicly available.) The current PUC action to double the allowed capacity under the current cap does not comport with the Legislature's consistent interest in controlling the costs for NEM. The appropriate method for adjusting the capacity would have been to seek Legislative approval. The current capacity of installed and pending solar projects is substantially below the current cap, thus there is no pressing urgency for raising the cap administratively without Legislative consideration. Analysis Prepared by : Susan Kateley / U. & C. / (916) 319-2083 FN: 0003933 AB 2514 Page 7